Unpacking normativity in transformative change: A comparative analysis of directionality in Norwegian and Dutch agri-food policy (1945–2023)

• Normativity in sustainability transitions requires explicit study. • We analyze policy problem frames, solutions and their underlying political-ideological values. • We show a prevalence of economic values in directionality of Dutch and Norwegian agri-food history. • Our value-based policy analysis offers a valuable contribution to unpack normativity. • Just transitions require critical reflexivity to balance social, ecological and economic values. Normative values such as ‘justice’ or ‘sustainability’ are envisaged to guide transformative change. However, transition research that explicitly studies normativity remains limited. We study policy problem frames, policy solutions and their underlying values to compare directionality in the history of Dutch and Norwegian agri-food policy. While Norwegian policies emphasize protectionism and national food security, Dutch policies promote a liberal, market-oriented approach. Our analysis uncovers a persistent dominance of economic values over social and ecological considerations in both policy contexts, highlighting the entrenchment of economic growth ideals within Western European agri-food systems and revealing relevant value tensions. Overall, the paper argues that directionality is an inherently normative and political process, shaped by competing values embedded in historical trajectories. Recognizing this complexity calls for increased reflexivity and active engagement with just transition perspectives to navigate value tensions and advance sustainable and just transition pathways for future agri-food systems.